9 Developments in the Dutch Postal Market i Executive summary The Ministry of Economic Affairs, Agriculture and Innovation commissioned WIK to prepare a study on future developments in the Dutch postal market. This study was prepared between May and August Based on extensive desk research and interviews with postal operators, mailers and associations, WIK expects that domestic and international mail volumes will continue to decline. Figure ES-1 Trend forecast: total domestic mail volume ,000 4,500 Volume decline ,000 3,500 3,000 2,500-26% -36% -47% 2,000 1,500 1, Paper matters Base case Digital world Source: Estimation WIK-Consult The figure below presents our estimate for the future development of domestic mail volume in the Netherlands, for three scenarios called paper matters, base case and digital world. From 2010 onwards, we expect that domestic mail volume will decline between 3.0 and 6.2 per cent per year, i.e. domestic mail volume will decline between 15 to 26 per cent until 2015, and between 26 and 47 per cent until However, volume developments differ between mail segments (see table below) Transaction mail, including regular invoices, statements and notifications to consumers and businesses, will decline most substantially of all segments, driven by digitalisation and the active promotion of digital channels.

10 ii Developments in the Dutch Postal Market The development of social and office mail (daily correspondence from businesses and institutions) is more influenced by continuous changes in communication behaviour. Volume losses in these segments are expected to be lower than for transaction mail. Addressed advertising mail will maintain its position in the marketing mix of advertisers. Volumes will decline slightly, less than total letter volume. Periodicals are also challenged by digitalisation but increasing variety of titles and the traditionally close relationship of Dutch people to paper-based magazines limits this process. Table ES-1 Volume trends for domestic mail segments by 2015 and 2020, all scenarios Total volume change in % Scenario Letters Advertising mail Total volume change in % Periodicals Letters Advertising mail Periodicals Paper matters -21% -6% -9% -33% -15% -19% Base case -27% -11% -13% -45% -22% -25% Digital world -34% -16% -17% -55% -36% -37% Source: Estimation WIK-Consult The negative mail trend also affects the volume of universal services (defined by postal legislation as single piece domestic mail and all international mail). In the three different scenarios, universal service volume will drop by 20 to 28 per cent until 2015, and by 32 to 49 per cent of today s volume until Overall, the share of universal service volume in total letter volume will decline because of the continuous migration of from universal service products to non-universal products, particularly in the office mail segment. Recent data reported by OPTA for 2010 and by PostNL the first three quarters of 2011 (after completion of our forecasts) suggests that the Dutch mail volume is currently developing more in line with the digital world scenario than with the base case. In November 2011, the digital world scenario therefore appears as the most likely scenario. 1 1 This paragraph was added to the report in November 2011.

11 Developments in the Dutch Postal Market iii Figure ES-2 Structure of domestic mail in 2010, 2015 and 2020 ( base case ) Periodicals 13% Periodicals 15% Periodicals 16% Advertising mail 29% Letters 58% Advertising mail 32% Letters 53% Advertising mail 35% Letters 50% Source: Estimation PostNL (2010), Estimation WIK-Consult (2015 and 2020) For the foreseeable future, we expect that businesses and individuals will continue mailing addressed advertising mail, periodicals and letters even though this report cannot forecast a possible bottom line for mail volume. Even after 2020, there will be individuals who are either not able to switch to digital communication or who still prefer paper communication, at least for some types of communication. For example, we expect that Christmas and greeting cards, and addressed advertising mail will not be substantially replaced by digital solutions soon. The composition of mail is clearly changing: As overall volumes decline, letters are becoming a less important part of mail, and advertising and periodicals are getting relatively more important (see figure above). In contrast to the negative volume trend in mail, the Dutch parcel market, particularly the B2C segment (business parcels sent to consumers), is dynamically growing with exceptionally high growth rates. The key players in the Dutch mail market, PostNL and Sandd, are both trying to capitalize on this opportunity: PostNL is intensifying its domestic and cross-border parcel activities while Sandd plans to enter the parcel market next year. Two years after full market opening the acquisition of Selekt Mail by Sandd has led to a quasi-duopoly in the Dutch mail market. WIK expects that this duopoly will be stable as long as both companies are successful in further improving productive efficiency, limiting future cost increases, and extending their business activities into growing areas. We expect that prices in the Dutch postal mail market will increase in most segments. Price developments in the postal market are influenced by a number of factors, most important of which are price elasticity, competition and substitution. Price elasticity gives an indication of the expected market volume change with a price change for different market segments, irrespective of competitive pressure or effects of, for example, digitalisation. Competition has a disciplining effect on the pricing policy of postal

12 iv Developments in the Dutch Postal Market operators. Digitalisation also has such a disciplining effect since it leads to a decline in total volumes and subsequently more competitive pressure over the remaining volumes. However, because of the lower total market volume, digitalisation also puts pressure on postal companies to increase prices to compensate higher cost per post item. The price increases we expect will partly be driven by the foreseen collective labour agreement between PostNL s competitors in the mail market and the unions, and the resulting wage increases. Price increases will vary between segments, depending on current price levels and intensity of competition in each market segment: Price increases will be limited and, at most, reflect future cost increases in the most competitive mail segments: advertising mail and periodicals. Prices in segments with little competitive pressure will rise more substantially. This particularly affects priority mail services, and thus domestic universal services. Much of these price increases will result from a decline in priority volumes, and the higher average cost at lower volume (the extra cost for next-day delivery will have to be funded by fewer priority letters, and average cost for priority letters increase). We expect prices will not increase much, and may in fact decline in those segments where more competition is expected for the future. These segments are non-priority products for office mail and transaction mail.

13 Developments in the Dutch Postal Market 1 1 Introduction 1.1 Background and objectives of the study Postal markets worldwide face declining mail volumes, while parcel markets, particularly the delivery of parcels to consumers, are growing. The Netherlands is one of the European countries that appears to be most affected by declining mail volumes. PostNL (formerly TNT Post) claims in its 2010 annual report that the ongoing substitution of physical mail by electronic forms of communication and competition in the first full year of a liberalised market led to a letter volume decline in the Netherlands of 9.0% 2. The Ministry of Economic Affairs, Agriculture and Innovation commissioned WIK to prepare a study on future developments in the Dutch postal market. More specifically, the Ministry requested answers to the following research questions: What factors will influence the development of the postal market in the years to come and in what ways? What will be the volume of the postal market and its various market segments in 2015 and 2020? What portion of this volume falls under Universal Service and how great is the demand for Universal Service? What does this mean for the viability of postal companies and competition? How will prices develop in the postal market? What does it mean for the position of mail carriers? In what ways does the government have an influence on postal market developments? The main purpose of the study is to provide data and background information on the developments in the Dutch postal market to the Ministry and Parliament to support upcoming reviews of Dutch postal legislation. The report is structured in two major parts. In chapter 2, we provide the overall market assessment. In this chapter each of the research questions listed above will be addressed, based, where possible, on a quantitative assessment, and on a qualitative assessment. In chapter 3, we first present the forecast results for each segment and, second, assess and explain the developments of each mail segment in more detail. 2 TNT, Annual Report 2010, p. 6.

14 2 Developments in the Dutch Postal Market 1.2 Market segmentation Any market segmentation depends on the purpose of the analysis. In many studies 3 the segmentation departs from operational (i.e. supply-side) product features. The primary objective of this study is to forecast future developments of mail volumes, and our segmentation serves this purpose. In this study we combine the operational view with a more demand-oriented view in order to clearly separate differences; first, in relevant influence factors that affect volume development; and second, in competition intensities. Additionally, restrictions on data availability were taken into account. We distinguish between the Dutch mail and the Dutch parcel market. The mail market consists of domestic and international mail. Domestic mail is split into letters, advertising mail and periodicals. Letters play the most important role in the Dutch mail market in terms of volume and revenues and are further broken down into social mail, office mail and transaction mail: Social mail consists of single-piece letters sent between individuals, mainly greeting and Christmas cards, and from individuals to businesses (including public authorities). These letters are stamped single-piece items, thus universal service letters, and usually delivered the next working day by PostNL (priority respectively 24-hour delivery service). Office mail consists of single-piece letters sent between businesses (including public authorities) and from businesses to individuals for daily communication purposes. Office mail is sent by all groups of business mailers: small, mediumsized and large businesses and public authorities. It is usually unsorted and heterogeneous in format and weight. Only part of office mail is sent as universal service mail (i.e. as losse post as offered by PostNL for stamped and franked mail), particularly by small and medium-sized enterprises. 4 Business customers have the opportunity to use a special bulk mail product of PostNL called Postage paid mixed. 5 Additionally, mailers may consolidate their office mail within the company and benefit from PostNL s special tariffs (e.g. volume discounts). Office mail is usually delivered the next working day (priority mail or 24-hour delivery service). Recently, the PostNL s major competitor Sandd has introduced a non-priority delivery service for unsorted office mail. 6 Transaction mail is industrially produced bulk mail sent by a relatively small number of business customers and thus not part of the universal service. Large mailers are for example banks and insurance companies (bank statements and 3 E.g. EIM (2005), RBB Economics (2007), OPTA (2010). 4 Intomart GfK (2011), Onderzoek naar de betekenis, behoeften en belang van post en de postdienstverlening, Table 3.4, p. 21. On average, surveyed SME s sent around 70% of their letters stamped or franked (with the NetSet contract), i.e. as universal service mail, per month. 5 See PostNL, Tariffs January 2011, Business products and services, p Interview Sandd.

15 Developments in the Dutch Postal Market 3 notifications), telecommunication companies and utilities (invoices) and public authorities. They have the choice between next day delivery services (24-hour delivery service offered by PostNL) and non-priority services with longer delivery times (48-hour and 72-hour delivery service of PostNL, two-day per week delivery service of Sandd) and benefit from special rates for postal delivery. In this study transaction mail is further segmented into priority and non-priority mail because of emerging competition in the non-priority mail segment. Addressed advertising mail is, similar to transaction mail, also industrially produced bulk mail. However, contents are different. While transaction mail, like bank statements and invoices, is part of the contractual relationship between businesses and their customers, advertising mail is part of the marketing mix of businesses. Advertising mail supports companies efforts to retain existing customers and to acquire new customers. Sponsored magazines (e.g. BMW magazine) that are mainly published for strengthening specific labels and trademarks are also part of advertising mail. By definition, advertising mail is not within the scope of universal service. Key players in this segment are PostNL and its subsidiary Netwerk VSP, Sandd and, until recently, Selekt Mail (acquired by Sandd this spring). Periodicals consist of subscribed magazines (weeklies, two-weeklies, monthlies) and club magazines (e.g. published by the Royal Dutch Touring club ANWB). In the Netherlands subscribed magazines are mainly delivered by postal operators (i.e. PostNL and Sandd). Periodicals are usually sent in bulk and not part of the universal service mail. International mail is split into international inbound and outbound mail. International inbound mail (letters, advertising mail and periodicals) are sent from abroad to destinations in the Netherlands. International outbound mail is sent from the Netherlands to destinations abroad. Due to data limitations and the relatively low volume share of international mail we refrain from further disaggregating these segments. All international mail collected and delivered by PostNL is part of the universal service, independent whether sent as single-piece or in bulk.

16 4 Developments in the Dutch Postal Market Table 1 Segmentation of the Dutch mail market Level 0 Level 1 Level 2 Level 3 Social mail Letters Office mail Priority mail Non-priority mail Domestic mail Transaction mail Priority mail Non-priority mail Advertising mail Periodicals International mail Inbound Outbound Source: WIK Consult. In this study we have developed a quantitative forecast model that solely refers to the Dutch mail market segments. In this model the future volumes for each sub-segment of domestic mail, i.e. social mail, office mail, transaction mail, advertising mail and periodicals, and for international inbound and outbound mail are estimated taken a bundle of influence factors into account (see section 2.1 for more detail). Based on more qualitative assessments we will discuss trends in the market for standard parcels (or deferred parcels, i.e. without accelerated delivery that is usually offered at higher prices). Special focus will be laid on four segments: Packages and parcels sent between individuals and from individuals to businesses (often return to sender parcels in relation with distance selling activities). Parcels sent between individuals are usually universal service parcels. Packages and parcels sent from businesses to individuals, usually distance selling parcels (goods ordered by phone, post or via internet, so-called e-commerce). These are parcels sent in bulk and are usually outside the scope of universal service. Packages and parcels sent between businesses (mostly outside the scope of universal service). International parcels that include international inbound and outbound parcels Other segments of the wider market for parcels and express services comprise express delivery and courier services that are outside the scope of this study. Various routing times, many of which are considered express services, are abundant particularly in the B2B segment. Note that in the highly competitive market for parcels and express services, it is increasingly difficult to separate traditional parcel services from express services. The trend seems to be that express services on the one hand and traditional

17 Developments in the Dutch Postal Market 5 parcel services (provided by the incumbent PostNL) on the other hand are merging into one market. This is reflected by two separate developments. First, established express operators (such as TNT express, FedEx or DHL) are now offering a diverse bundle of services, including deferred services that are often similar to traditional parcel services. Second, the quality of PostNL s traditional parcel service has increased over the last decades to such a standard that parcel services today have become more similar to what was considered an express service previously. TNT Express states that there are blurring boundaries between the various segments of the transportation industry 7 and the company plans to expand to a larger addressable market, which includes the parcel market not normally classified as express (standard parcels), business-to-consumers (B2C) and intercontinental shipments Methodology The methodology of the study includes the following elements: Extensive desk research (Dutch and international studies) Interviews with postal operators and postal customers Forecast model for the quantitative assessment of volume developments in the mail segments Extensive desk research The study team has collected specific data through extensive desk research, including: Reports on the Dutch mail markets (e.g. commissioned resp. published by the Ministry of Economic Affairs, OPTA, TNT, unions (ABVAKABO FNV, BVPP, CNV Publieke zaak, CNV Bedrijvenbond and FNV Bondgenoten), associations and independent consulting companies) Information on the Dutch markets for advertising and periodicals (as published by associations, e.g. NUV or DDMA) Annual reports and publications of Dutch regulatory authorities (Ministry of Economic Affairs, OPTA) Annual reports, presentations and other publications by Dutch postal operators European and international studies on market developments and electronic substitution (e.g. studies commissioned by the European Commission, studies on communication trends published by IPC and Pitney Bowes, and studies on international mail by UPU) Statistical data (Statistics Netherlands, Centraal Planbureau, Eurostat) 7 TNT Express, Annual Report 2010, p TNT Express, Annual Report 2010, p. 21.

18 6 Developments in the Dutch Postal Market Interviews with postal operators, postal customers and associations The project team has undertaken substantial efforts for primary research activities with stakeholders. Interviews have been conducted with Dutch regulator OPTA and the postal operators PostNL and Sandd. Additionally, we cooperated with associations representing large mailers (VGP), marketers (DDMA), publishers (NUV) and the distance selling industry (Thuiswinkel). We spoke to customers from the financial industry, telecommunications and the public sector, representing in sum around one fifth of the Dutch mail market (~1 billion mail items), to get a deeper understanding of the demand for Dutch postal services. We gratefully acknowledge the collaborative assistance received in the preparation of this report from the Ministry, OPTA, PostNL and Sandd, the associations and from the mailers we talked to. Forecast model for volume developments in the mail segments The quantitative forecast is based on an Excel-based spreadsheet model. The model comprises the segments of the Dutch mail market which are introduced in section 1.2. As output it provides the mail volumes per mail segment in the years 2015 and 2020, respectively. The model is based on a partial approach which incorporates the direct effects of the main influencing factors. The relevant influence factors have been identified taking into account the findings of our market research. These factors are mainly price effects, substitution effects and macro-economic effects. In order to limit the model complexity neither interdependencies between the factors (i.e. indirect effects) nor second-round effects are considered. The total volume effect results from the sum of each of the direct effects. We have included in the model the following input parameters: the share of priority mail and non-priority mail for office mail and transaction mail; PostNL s market shares for each mail segment; the share of mail considered as universal service according to Dutch postal legislation (in relation to estimated PostNL s mail volume); price factors (expected price changes and price elasticities); substitution rates; and macroeconomic-based effects. The parameterization of the input variables is based on WIK assumptions which we derived from the research part of this project (extensive desk research and interviews with customers, associations and postal operators) and from our long standing market expertise. Furthermore, model inputs were discussed with the operators PostNL and Sandd. More details on the model can be found in the annex.

19 Developments in the Dutch Postal Market 7 2 Overall market assessment 2.1 Influence factors of the postal market and scenario building Postal markets are affected by a number of factors as presented in Figure 1. However, the intensity with which the markets are affected varies between each factor and depends which segment of the postal market is considered. Figure 1 Influence factors of the postal market Digitalisation Cost saving and efficiency measures of mailers Postal market Competition and postal prices Economic and population growth Digitalisation In the postal world, digitalisation describes the process from paper-based to electronic or digital communication. Postal operators consider this process as the major threat for the future of the mail business. 9 For letters, this means that, among others, invoices, notifications or statements are sent by or can be collected from a company s website. In the case of advertising and periodicals, digitalisation means that with emerging online media an additional channel has been created to get into contact with a company s customers (e.g. by blogs or social networks), to place advertisements or to publish news and information. This new channel competes with more traditional ways of advertising and with the paper-based way of publishing newspapers and magazines. In this respect postal services are affected more indirectly: Advertisers decide how to distribute their budget to competing advertising media. If these budgets do not grow (as happened in the last years) and the number of advertising options increases, then the piece of the cake for each of the competing options becomes smaller. In the case of publications the impact is even more indirect. Postal operators have only limited influence on the development of subscriptions of paper-based dailies and magazines. If readers decide to switch to online dailies and magazines, subscriptions will decline which in turn implies less volume to deliver for postal operators. 9 See i.a. IPC (2011), Role of Mail 2020 and current annual reports of TNT, Deutsche Post DHL, Itella, Posten Norden (now PostNord).

20 8 Developments in the Dutch Postal Market The basic condition for a successful process of digitalisation is the existence of a powerful digital infrastructure. This precondition is perfectly fulfilled in the Netherlands; the country is leading in fixed broadband penetration with 38.1 fixed broadband subscriptions per 100 inhabitants (see Figure 2) and reaches the same penetration rate for mobile broadband subscriptions. Figure 2 Fixed (wired) broadband penetration per 100 inhabitants, for leading OECD countries, December Netherlands Switzerland Denmark Norway Korea Iceland Sweden Source : OECD Source: OECD Broadband statistics [oecd.org/sti/ict/broadband] Within the European Union, and even worldwide, the Netherlands is a leader with regard to internet and broadband connection as recently acknowledged by the Dutch Ministry of Economic Affairs, Agriculture and Innovation: The Netherlands is one of the global leaders when it comes to broadband coverage, thanks to competition in and between various networks. Access to highspeed broadband in the Netherlands is already close to the European targets for 2020: 98% of Dutch households already have access to broadband with a speed of 30 Mbps, and more than 90% have connections with speeds of at least 100 Mbps. Given the national availability of satellite (currently up to 4 Mbps), there is 100% coverage for functional Internet access. 10 As the infrastructure has successfully been established at this point in time, it depends on the communication and the buying behaviour of Dutch people whether the existence 10 Ministerie van Economische Zaken, Landbouw en Innovatie (2011), Digital agenda.nl, p. 14.

21 Developments in the Dutch Postal Market 9 of a high-capacity digital infrastructure had and will have an impact on the postal market. Figure 3 Use of internet services in % of population (2010) 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% Reading online newspapers/magazines Internet banking Using the Internet for interaction with public authorities DK FI NL NO SE EU-27 average Using the Internet for interactions with public authorities: Sending filled forms Ordering goods or services for private use Source: Based on Eurostat, Benchmarking Digital Europe: indicators (Percentage of individuals aged 16 to 74) The degree of digital acceptance 11 is reflected in the intensity with which Dutch people use online services, such as reading online newspapers magazines, internet banking, egovernment services or ordering goods and services through the internet. Particularly with regard to the last activity, Dutch people ranks second EU wide. 12 Figure 3 shows that already in 2010 the digital acceptance of the Dutch population in terms of use of internet services was substantially higher than the EU average. The intensity of using online services by Dutch people is comparable to the Scandinavian countries that are in our view the most advanced European countries in terms of digital acceptance. Overall, we estimate that due to the relatively high degree of digital acceptance in the Dutch population, the current and future influence of digitalisation on the Dutch postal market is more significant than in many other European countries. 11 This expression is used in IPC (2011), Role of Mail 2020, and means the degree that people and businesses make use of internet and online services. 12 European Commission (2010), Europe s Digital Competitiveness Report, ICT Country Profiles, The Netherlands, p. 175.

22 10 Developments in the Dutch Postal Market Cost saving and efficiency measures Digitalisation is not the only factor that results in declining mail volumes. The financial crisis 2008/2009 has revealed that bulk mailers and advertisers look for more (cost) efficient ways to distribute their messages. The potential of such measures is limited for social and office mail compared to transaction and advertising mail. The potential for cost saving is particularly relevant for transaction mail: The relationship between production and delivery cost of one transaction item is around 1 : In the case of transaction mail, measures like reducing the mailing frequency of invoices and statements (e.g. from monthly to quarterly) can substantially reduce letter volume. Advertisers have improved efficiency of addressed direct mailings by better analysing existing customer data and creating more customer-targeted advertisements. 14 This is reflected in a general trend of declining direct mail items per advertising campaign. However, whether this development results in overall declining mail volumes depends on how the total number of advertising campaigns develops. Other measures to save costs do not result in declining mail volume but change the mail volume structure. Instead of using the relatively expensive 24-hour delivery service, bulk mailers increasingly switch to 48-hour delivery service or even 72-hour / next week delivery services. The economic crisis 2008/2009 has accelerated this development as not only observed by PostNL 15, but also by foreign postal operators that offer priority and non-priority delivery services. 16 Additionally, they may switch from the incumbent PostNL to cheaper competitors like Sandd. However, while mail volumes remain roughly stable in these cases, market revenues (and possibly margins) decline. Postal prices and competition Postal prices combined with service quality and service innovations (also in terms of customer orientation) are the key measures of postal operators to influence demand for postal services. Competition within the postal market promotes the development of new services and alignment of prices to costs. The developments in competition are addressed in section 2.5 of this chapter, while current and estimated future price developments in the Dutch postal market are summarized in section Customer interviews. In future this relationship may slightly change because of the introduction of colour printing. 14 See IPC (2011), Role of Mail 2020, p See TNT Post, Annual Report 2010, p. 38: The continued underlying decline in addressed postal item volumes in 2010 was primarily due to a decline in single items and reduced demand for bulk mail as a result of cost saving programmes initiated by some of Mail s key customers and due to the continued substitution by electronic media. The economy product delivered through TNT Post and the budget mail service delivered through Netwerk VSP retained volumes in the market, resulting overall in a limited loss of volumes to competition. 16 See for example Posten Norden, Annual Report 2010, p.5 (results for Denmark and Sweden) and Itella, Annual report 2010, p. 12: While first class letters have substantially declined, second class letters remained fairly stable or even increase.

23 Developments in the Dutch Postal Market 11 Macro-economic factors Economic, population or household growth 17 and the general development of prices (inflation rates) are the most important macro-economic factors affecting developments in the postal market. The economic and demographic developments generally influence the demand for postal services; an increasing number of households, for example, results in more invoices (e.g. for energy, water and so on). The inflation rate influences cost and price developments in the postal sector. Additionally, the development of consumer prices (measured with the consumer price index) is an important benchmark in Dutch price regulation for the universal service. 2.2 Forecast model, assumptions, and scenarios Key assumptions In order to quantitatively estimate the future volume developments in the Dutch mail market we have developed an Excel spreadsheet model that takes into account each of the discussed influence factors. Figure 4 shows the indicators our model uses to translate the influence factors into estimates of mail volume. Figure 4 Influence factors: Parameters in the forecast model The total change in volume per mail segment is the sum of effects resulting from digitalisation, price changes and macro-economic influences. 17 See for example IPC (2011), Role of Mail 2020.

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